Transcript Map of the Former Yugoslavia

Conflict Prevention Mainstreaming at UNDP
in FYR Macedonia
JPO Regional Workshop
25-29 October, 2004
Sarajevo
Goal
 To
support CPR knowledge development by sharing
mainstreaming strategies from UNDP in FYR Macedonia
(henceforth: Macedonia)
Objectives
 To
substantiate the need for CPR mainstreaming in UNDP
Country Offices
 To demonstrate how CPR principles can be applied in practice
 To illustrate structural and programmatic approaches to CPR
mainstreaming
Agenda
1.
2.
3.
4.
5.
6.
Political overview of Macedonia
UNDP Macedonia operational and resource framework for
CPR
PDA mandate to enhance CPR objectives
CPR Programs at UNDP Macedonia
Summary
Lessons learned
Political Overview: Background
 Total
pop 2.1M, approx. 64% eMacedonian, 25% eAlbanian, 11%
other.
 Independence since 1991, upon break-up of former Socialist
Republic of Yugoslavia
 Transition from socialist, planned economy to market economy
ongoing and slow.
 Rights of minorities enshrined in Constitution but not enforced.
Inter-ethnic relations, particularly between eM and eA, are tense.
 Conflict and unrest in western Balkans since 1992 sustains political
instability throughout the region. Ongoing ethnic tension between
eSerbs and eAlbanians in Kosovo a particular concern for stability
in Macedonia.
Political Overview: Background
 2001:
short conflict launched by eAlbanian National Liberation
Army against Government to force constitutional negotiation over
status of eAlbanians. Peace brokered in after six months, called
Ohrid Framework Agreement (OFA).
 NLA became DUI (Democratic Union for Integration) and after
parliamentary elections became the second largest party in the
ruling coalition.
 OFA intended to promote ethnic integration. Consequently it
requires important changes to the status quo regarding minority
rights, particularly for eAlbanians.
 OFA implementation has become the most important government
agenda item, not least because it is a precondition for EU and
NATO accession which are coveted goals for Macedonia.
 However, political and economic reforms are slow and difficult and
the quality of governance remains a serious concern.
Political Overview: Key Challenges
 1.
Government decentralization: an essential milestone of the
OFA and a weathervane of the GoM’s willingness to institute
power-sharing reforms across ethnic lines. November 7
referendum could result in delays and spike the political crisis.
 2. Rule of law: lack of enforceability of contracts is a serious
handicap to human rights and economic development.
 3. Trafficking and SALW: human, narcotics and weapons
trafficking feeds criminal elements and sustains insecurity.
 4. Refugees and DPs: cross-border and domestic returns since
the 2001 crisis are slow because of persisting insecurity and
lack of inter-ethnic confidence.
 5. Unemployment: well over 37%, sustains grey/black market
activity. Youth unemployment a serious concern for economic
and political security in the face of ongoing ethnic tensions.
Political Overview: Summary
 Failure
of the state to effectively manage inter-ethnic issues
through democratic, accountable government processes has
sharpened the root causes of conflict to the point of political
crisis and instability. Continued support through a visible IC
presence is needed. UNDP role is to deliver programs building
on the capacity of the state to anticipate crises and address
them effectively through sound human development
approaches. Challenge for UNDP is to carefully protect its
neutrality in a highly politicized environment.
UNDP Macedonia Operational and Resource
Framework for CPR: What
 UN
Common Country Assessment (CCA): broad situation
analysis, identifies major development concerns to be addressed
through concerted efforts of UN Country Team. 2005-2009
Assessment for Macedonia identifies conflict prevention as a
discrete area of intervention and suggests need to develop a
national capacity for early warning analysis.
 UN Country Program Document (CPD): identifies desired
outcomes, outputs, indicators and partners for the UN country
program. In Macedonia, the desired outcome for conflict
prevention is to help develop a culture of peace by building trust
and confidence among ethnic groups.
 CPD Action Plan: goes beyond the CPD by identifying specific
activities for achieving the desired CPR outcomes. In
Macedonia, this includes the production of Early Warning
Reports, confidence-building consultations, and a reduction in
SALW proliferation and use. Local partners (government and
NGOs) are identified as the key implementing channels.
UNDP Macedonia Operational and Resource
Framework for CPR: What (continued)
 CPR
program cluster: in Macedonia this is the principal locus of
implementation for discrete CPR projects. CPR objectives are
also achieved through the Governance and Decentralization,
Economic Development and Environment clusters. This is
where assistance with mainstreaming becomes important.
 Peace
and Development Advisor: has been dedicated to the
Country Office to help deepen and enhance the CPR program
strategy, mainstream CPR into all program clusters and support
the development of Country Office capacity.
UNDP Macedonia Operational and Resource
Framework for CPR: How

Dedicated CPR project cluster allows the CO to mount
strategic and responsive programming. Helps support political
stability and enhance sustainable development in a critical
post-conflict period marked by ongoing political crisis.

Through regional programs implemented at the country
level, i.e. SALW reduction, the CO can draw from resources
and capacities of the Belgrade-based SEESAC office and help
support regional objectives for conflict prevention in critical
areas of intervention
UNDP Macedonia Operational and Resource
Framework for CPR: How (continued)
 Through
the production of relevant policy instruments: a new
series of Early Warning Reports is being produced, with the first
issue to come out before the upcoming referendum, on 2
November. Nationalization component supports the objective of
developing government’s capacity to identify, assess, and
respond appropriately to conflict indicators.
 Targeted
support through missions from HQ and consultants
and ongoing assistance from regional resources.
 Addition
of a PDA to enhance strategic programming and
capacity development.
UNDP Macedonia Operational and Resource
Framework for CPR: PDA Mandate
The UN seeks to promote inter-ethnic reconciliation and
consolidate peace by:
 Making
planning decisions that are sensitive to ongoing political
developments; and
 Preventing
the recurrence of violent conflict through harmonized
programming approaches.
UNDP Macedonia Operational and Resource
Framework for CPR: PDA Mandate
Political analysis

The PDA takes a regular pulse of developments in the country
by summarizing events, highlighting issues of concern and
recommending action by the appropriate UNCT member. This
involves meeting with political actors, NGOs, IC members and
other key players to discuss emerging issues, explore their
perspectives and formulate objective assessments. UNDP’s
neutral position and good reputation in Macedonia’s politically
polarized environment give legitimacy and credibility to the role
of the PDA. Weekly reports and less frequent thematic reports
are shared with the UNCT, RBEC, BCPR and DPA.
UNDP Macedonia Operational and Resource
Framework for CPR: PDA Mandate
Programming

The PDA steers the development of a multi-year program
strategy for UNDP’s CPR cluster, inspired by the CCA and
CPD. A workplan has been formulated to strategize program
development by the PDA that will guide the CPR program
strategy. Responsive projects are formulated in response to
emerging issues, with funding dedicated to support the PDA.
To date, funding has been secured for a project in support of
government decentralization and for a strategy for the
economic revitalization of Macedonia’s Former Crisis Area.
UNDP Macedonia Operational and Resource
Framework for CPR: PDA Mandate
Capacity development and mainstreaming

Support goes primarily to the UNDP Country Office as the
principal programming agency in the area of conflict prevention.

Capacity development includes delivery of training modules
adapted to each programming cluster. Beneficiaries are Cluster
Managers and Project Managers. Purpose is to sensitize
program staff to CPR triggers when developing projects, to
avoid doing harm and enhance project sustainability, and to
build their capacity to mainstream CPR directly.

Mainstreaming ensures that ongoing projects and proposals
duly consider and address root causes of conflict in all projects.
The PDA role is to recommend modifications to respond to
vulnerabilities or address emerging issues.
UNDP Macedonia Operational and Resource
Framework for CPR: PDA Mandate (continued)
Capacity development and mainstreaming
 (continued)
 The
PDA mandate is limited and the CPR cluster will eventually
take over CPR mainstreaming for the UNDP Country Program.
Consequently, the Cluster Manager needs a high level of
confidence to properly champion CPR as a mainstreamed issue
and ensure that CPR best practices are utilized in project
formulation and implementation.
PDA Mandate:
CPR Funding Sources and Strategic UN Linkages




Funding support for the PDA depends on the constellation of UN
interests. In Macedonia, the position is funded by UNDP. Track
funding from the UNDP RBEC cluster can therefore be
mobilized to support projects.
BCPR provides significant hard and soft support through project
funding, training, resources and advice.
UNDPA takes an active interest in all CPR activities that support
the UN mandate to help stabilize the region through the UN
Mission in Kosovo (UNMIK). The UN’s Conflict Prevention Trust
Fund channels funds through the PDA, and the PDA facilitates
information flow between DPA and UNDP: strategic linkage.
The PDA is a UNCT resource and reports to the Resident
Coordinator. This helps facilitate joint programming and build
synergies between UNCT agencies on the ground.
CPR Programs at UNDP Macedonia
Early Warning Reports
 A new
series of quarterly reports will start in November 2004.
Objectives: 1) to assess the level of conflict risk based on public
polling about economic, political, personal security, and interethnic issues and; 2) point to urgent areas to be addressed by
government through public policies and programs.
 Report
will reveal gaps to be addressed through discrete CPR
projects and also through other program clusters, i.e. economic
development and governance – a mainstreaming outcome.
CPR Programs at UNDP Macedonia
Safer Communities in Macedonia (SACIM)
 Phase
1 (completed): support to Ministry of Interior to conduct a
small arms collection and destruction program and develop a
policy framework to deal with SALW.
 Phase
2 (ongoing): continued support to capacity development
of Ministry of Interior; and launch of pilot “safer communities”
project in three mixed-ethnicity communities to reduce SALW
use and proliferation at community level.
 Community-based
projects build synergies by seeking linkages
and feeding into other cluster projects (i.e., Localizing
Sustainable Development) – a mainstreaming outcome.
CPR Programs at UNDP Macedonia
Economic Revitalization of the Former Crisis Area
 Objective
is to support long-term political stability in the FCA
using economic development as a CPR entry point.
 A comprehensive
strategy focusing on human development
(best practice), guided by MDGs (international policy
commitment), and seeking the engagement of all UNCT
members (promote joint programming).
 Creates
space for activities to be launched through other
program clusters under the umbrella of the strategy – a
mainstreaming outcome.
CPR Programs at UNDP Macedonia
Support to Promoting Government Decentralization
 Funded
by the UNDPA Conflict Prevention Trust Fund.
 Promotes
public understanding of the human development
rationale for decentralization by channelling accessible,
digestible information through non-politicized vehicles, i.e. a
magazine and a TV documentary. Promotes consultation
between government, outside experts and stakeholders through
a conference.
 Project
will be implemented through UNDP’s Governance and
Decentralization Cluster – a mainstreaming outcome.
Summary
1.
Political overview of Macedonia: the context for CPR
responses through UNDP
2.
UNDP Macedonia operational and resource framework for
CPR: the how, what and why
3.
PDA mandate to enhance CPR objectives: a tool for facilitating
CPR capacity development and mainstreaming
4.
CPR Programs at UNDP Macedonia: how CPR mainstreaming
outcomes are being achieved in practice
Lessons Learned
 CPR
should not only be a discrete programming area.
Mainstreaming CPR through other projects is essential for
promoting peace and stability and for addressing institutional
flaws that reinforce the causes of conflict.
 Training
an important starting point for building confidence
among program staff to adopt CPR approaches and
mainstream them into their programming.
 CPR
mainstreaming into project design and implementation is a
useful way to promote CPR capacity development, provided it is
participatory.
 PDAs
are effective channels to support CPR mainstreaming.
With the right support from headquarters and the Country
Office, their role can be optimized.
Conflict Prevention Mainstreaming at UNDP
in FYR Macedonia
Good luck with your CPR
programming and mainstreaming initiatives!
Thank you